ГОСУДАРСТВЕННОЕ
УПРАВЛЕНИЕ/ 2.Современные
технологии управления
candidate of economic sciences Kirsanov S. A.
Saint Petersburg
institute of humanitarian education, Russia
The state
housing policy in the western countries is rational experience for Russia
The housing policy represents set of the measures
directed on creation of conditions and streamlining of processes, providing
possibility of a free choice, the way of satisfaction of individual housing
requirements of all categories of the population having the various income.
The state housing policy should be dynamic,
floatingly, is subject to an environment. Any political transformations make
direct impact on its contents, forms and realization mechanisms. Its structure
develops of the main directions which are similar to system of social functions
of the state and mechanisms of realization of these functions as which various
structures, norms and principles act.
the post-war housing policy of Russia was based on
priorities and the tendencies, characterizing Stalin totalitarian policy, the
housing policy of the period of the 1960th years reflected change of a
political policy and orientation to achievement of the social purposes in that
look as they were understood by the party country leaders in the 1950-1960th
years, and command principles of the management, discharge of the citizen from
administrative processes on all of them levels, base expansion for financial
abuses, nomenclature orientation in distribution of housing were reflected in
housing policy of the period of "stagnation".
Let's note that realization of the state housing
policy of Russia in new century goes taking into account new social priorities:
1) satisfaction of housing requirements of the population with essential
participation of the federal center and attraction of considerable volumes of
budgetary funds; 2) addressing of assistance of the state in housing
acquisition by separate categories of the population. The first priority
testifies that the state didn't decline all responsibility for shelter
provision of all social groups of the society, the second – allocates separate
categories of the citizens falling under address support of the state.
Nevertheless, two thirds of Russians aren't satisfied
with living conditions; every fourth family lives in bad or very poor housing
conditions; in turn on receiving apartments there are about 4,5 million
families, and the waiting time in turn makes still 15-20 years.
In the housing legislation there are shortcomings
which limit:
1) demand in the housing market, including:
- interest rates on a mortgage (11-13 %) are still
enough high;
- high prices for housing;
- the mixed structure of turn on receiving social
housing;
- high restrictions in range of definition of the
housing rights;
2) the offer in the housing market, including:
- large number of coordination of allowing
documentation;
- lack of the land lots with infrastructure and
procedures of access to these sites.
It became obvious that the Housing Code of the Russian
Federation of 2004 can't solve all questions in legal relations, and,
therefore, in law-enforcement practice there will be disputes which are
necessary for solving in a judicial order. In this regard, as well as earlier,
the housing legislation remains problem from the point of view of its
application and protection of the housing rights of citizens. Respectively
available legal problems in the field of the housing relations are necessary
for solving by modification and additions of the Housing Code of the Russian
Federation, and also by adoption of other federal laws and regulations of the
Government of Russia.
For successful realization of housing reform in Russia
it is necessary to rely on use of modern models of development of the housing
sphere abroad. Rationality of such approach consists that the mechanisms of
management checked by time and the developments which have shown high
productivity are applied. The negative parties of this process can be shown in
mechanical transferring of effective foreign models of the solution of housing
problem to absolutely other Russian social and economic conditions. Therefore
the critical analysis of foreign experience, adaptation of regulatory base and
the western models of management to local conditions is necessary.
It should be noted that in the majority of foreign
countries active state support of development of the housing sphere is carried
out. The analysis of the international experience in this sphere opens
prospects for an impartial assessment of prospects of housing policy carried out
today in Russia.
If to classify the main options of implementation of
housing policy in the various countries, as its main types will act liberal
(liberal and reformist), conservative (neo-Conservative) and socialist.
Revision of a course of housing policy, its change in the direction of liberal
or conservative orientation has the certain cyclic character connected with
coming to power of political forces of the corresponding orientation. The first
two approaches are characteristic for the countries with market economy. The
paternalistic approach was most actively realized in the socialist countries in
the 60th – the 80th years of the last century, it was characteristic for the
USSR.
In Great Britain, Norway, the USA, Germany, Holland,
Sweden, Australia carried out the housing policy based on liberal principles
1950-1970 years.
In the USA the maximum simplification of access to the
credits for the majority of the population became the main direction of the
state housing policy and the solution of housing problem. Development of
mortgage lending had national value and remained the priority direction of the
state housing policy which was added by a complex of legal acts, skillful
regulation of tax system, protectionist actions, the state allocations in housing
construction, support of each American in realization of his dream of own
house.
The mechanism of the solution of a housing question
included in the USA: а) ensuring solvent demand in the housing market support of people with
the low income by means of the program of housing vouchers; б) creation of the loan and savings associations which were carrying out
crediting of citizens, wishing to get real estate on the means brought by
members of these organizations. As a result the housing boom in the middle of
the last century passed to the stage of steady growth lasting and until now. In
1950г. 55 % of the American households, in 1960г
were owners of own housing already. their number grew to 61.9 %, in 1980г. - to 64.4 %, in 2000г. - to 67,4 %.
Overcoming of an acute shortage of the dwellings
caused by destruction of housing stock was the main maintenance of housing
policy of the European states in the first post-war decades. The main cure of a
problem – building of scales of housing construction. Dwellings were under
construction high rates and almost in any free territory. The states at this
stage were the main characters of the housing market.
In Germany encouragement of builders to construction
of new houses was a main goal which was pursued by the state at modernization
of housing policy. The main tools thus were: а)
crediting and subsidizing of business concerns, noncommercial associations of
buildings and cooperatives for housing construction (in exchange for the
preferential loan private and public organizations undertook to lease a part of
the constructed housing to families with the income below a certain level); б) the offer: earth under construction was at the low prices; direct
participation of the state in housing construction with direct budgetary
financing.
The social market system allowed to restore all
housing stock lost during the Second World War in short terms, and then
substantially to modernize it and to solve housing problem of many categories
of citizens. Many countries still widely make use of experience of social and
market housing policy of Germany.
Significant increase in forms and volumes of the state
participation in the solution of housing problem of the population, allocations
in housing construction on the basis of realization of liberal principles in
economic policy of the states was observed in the 1960th - the beginnings of
the 1970th years in Great Britain, France, Sweden. So, the 1950th-1960th years
the state allocations for housing construction increased in England almost in
10 times. With the assistance of the state large-scale construction projects
were carried out, new housing put into operation over 90 % were under
construction of everything with state participation. The private builder
obtained the license for participation in housing programmes only at a consent
to the fixed price of sale and to construction of houses of the limited area
(to 140 sq.m). By the end of the 70th years in England municipalities owned 33
% of all housing stock as a result of which privatization from 1979 to 1987 the
share of apartments and the houses being in a private property, increased from
57 % to 62 %.
The conservative housing policy was rather
inconsistent. The Swedish housing programme «One million dwellings» (1964г appeared one of the most successful in the world, according to the
international experts.), allowed to solve a problem of providing citizens
quality housing. The program assumed a construction of one million dwellings
within 10 years. In spite of the fact that the ambitious political goal of the
program connected with education of «good citizens of democratic society»,
wasn't reached, its major part was executed: in the specified terms about
1.006.000 new dwellings were constructed.
Thus, in all European states and the USA the crucial
role in implementation of housing construction was assumed by the state: it
legislatively regulated all processes connected with construction of housing,
supported the banks which are giving out the credits for housing construction
through taxation system, allocated the land lots under individual housing,
encouraged creation of associations and other organizations promoting the
solution of housing problem in the country. That fact is all-important that,
"leaving" a social subsystem of the market, the state didn't lose the
general control over a situation and reserved important roles, functions and
mechanisms of impact on housing system as a whole.
So, practice of the solution of a housing question
shows that without a support on the state this problem can't be resolved, as
only the state: а) forms legislative and legal base and housing policy, holds events for
reforming of the housing sphere; б) regulates development
of private business in the housing sphere and keeps under control sharp
fluctuations of construction production; в) carries out the
address help in acquisition and housing construction to separate categories of
the population and social support by means of subsidies for payment of housing
and utilities to needy segments of the population.
Experience of implementation of the Dwelling Program
in the Russian regions allows to draw a conclusion that the most effective use
of means of the federal budget intended for implementation of obligations
established by the law of the state on shelter provision of separate categories
of citizens, is reached if these means go in the form of address target
subsidies, in the form of the state housing certificates.
Strategy of implementation of the national project
«Affordable and comfortable housing – to citizens of Russia» includes a number
of the directions from which the most important are: increase of availability
of housing; increase in volumes of mortgage housing lending; increase in
volumes of housing construction and modernization of objects of municipal
infrastructure; implementation of the state obligations on granting housing to
categories of the citizens established by the federal legislation. All of them
– are exclusively socially focused, but, unfortunately, socially aren't
realized.
The system of mortgage housing lending in Russia is
developed, but isn't dynamic - annual total volume of the credits - about 10
billion rubles. A component of system of mortgage housing lending are reliable
and transparent financially mechanisms of accumulation of means citizens with a
view of housing acquisition. However at existing legislative base arising in
many regions of Russia similar schemes, including schemes of individual share
in construction, possess the increased risks for citizens as there are no the
mechanisms guaranteeing recoverability of means enclosed by them. All this led
to that:
- the quantity wishing to improve living conditions
makes 61 percent of families;
- the general need for housing makes about 55 percent
of available fund (about 1,6 bln sq.m).
Because of sharp differentiation of the population on
level of the income the solution of housing problem for the majority wishing is
more than inconvenient. Thus not only needy stand in a queue, but also those
who can independently acquire housing with use of the credit or with the
partial help of the state.
For essential increase in volumes and quality of
housing construction, formation of the market of affordable housing it is
necessary to remove existing organizational, administrative and standard legal
restrictions.
Thus, approved and realized in Russia the National
project «Affordable and comfortable housing – to citizens of Russia», the
Federal target Dwelling programs for 2002-2010 and for 2011-2015, in our
opinion, in full executed can't be: liberally directed state housing policy
won't give necessary effect at undeveloped liberal economy, low social security
of the majority of the population of the country and an abundance of unresolved
social problems.
Further improvement of housing policy of the Russian
state is necessary that, certainly, will promote development of the housing
sphere, increase of efficiency of realization of housing reform in country
regions.
Тhe used literature:
1. Housing code of the Russian Federation from
29.12.2004 N 188-FZ
2. The resolution of the government of the Russian
Federation No. 1050 from 17.12.2010. «About the Federal target Dwelling program
for 2011-2015»
3. Kvasov A. The largest economic crises. Phenomenon
of state-monopoly economy//World history. – M, 2008.
4. Kiyanenko K. Introduction in a perspective of the
modern market dwelling. – Vologda: Publishing house of VOGTU, 2002.
5. Simmie, J.M. Citizens in Conflict. The
sociology of town planning. - London: Hutchinson & Co, 1974. P.96.
6. Scoffham E.R. The Shape of British Housing. New York: Longman Inc., 1984. Р.20.
Интернет-ресурсы
7. http://www.spbnovostroyka.ru/analitics/20070625.php
8. http://fcp.economy.gov.ru/cgi-bin/cis/fcp.cgi/Fcp/ViewFcp/View/2011/324
9. http://www.gorcenter.spb.ru/forParticipants.php?section=2
10. http://help-realty.ru/zhilischnaya_entsiklopediya/page97.html
11.
Жилищный
кодекс РФ от 29.12.2004 N 188-ФЗ
13.
Квасов А.С. Крупнейшие экономические кризисы. Феномен государственно-монополистической
экономики //Всемирная история. – М, 2008.
14.
Кияненко К.В. Введение в проблематику современного рыночного жилища. –
Вологда: Изд-во ВоГТУ, 2002.
15.
Simmie,
J.M. Citizens in
Conflict. The sociology of town planning. - London: Hutchinson & Co, 1974.
P.96.
16. Scoffham E.R. The
Shape of British Housing. New York: Longman Inc., 1984. Р.20.
Интернет-ресурсы
17.
http://www.spbnovostroyka.ru/analitics/20070625.php
18.
http://fcp.economy.gov.ru/cgi-bin/cis/fcp.cgi/Fcp/ViewFcp/View/2011/324
19.
http://www.gorcenter.spb.ru/forParticipants.php?section=2
20.
http://help-realty.ru/zhilischnaya_entsiklopediya/page97.html